Decisions

This report seeks approval for the procurement and the award of a new contract(s) to support the continued delivery of the Council’s housing energy efficiency (retrofit) programme, which contributes to achieving the objectives set out in the Council’s Climate Change Strategy 2021– 2 2026. The strategy outlines a vision for Cambridge to become a net zero carbon city by 2030, subject to the necessary enabling actions from central government, regulators, and industry.

The Council’s Housing Asset Management Strategy includes a commitment to improve the energy efficiency of its existing housing stock, in turn reducing carbon emissions. A key target is to upgrade all Council homes currently rated EPC ‘D’ or below to a minimum of EPC ‘C’. To support this, a capital budget allocation of £3.8 million per annum has been made within the Housing Capital Plan through to 2035. This has been supplemented by government grant funding secured since 2023 onwards. The programme is also aligned with the national target for all social housing to achieve at least EPC ‘C’ by 2035.

Under the current External Wall Insulation (EWI) contract, which commenced in December 2023, approx. 225 council homes have been retrofitted from EPC ‘D’ and below to EPC ‘C’. Measures delivered include external wall insulation, enhanced ventilation, replacement of external doors and windows where required, top-up loft insulation and associated maintenance and repairs. This phase was supported by £2.26 million from the Social Housing Decarbonisation Fund (Wave 2.1).

Following a successful bid to the Wave 3 round of the Government’s Warm Homes: Social Housing Fund, the Council has been awarded £3.8 million to upgrade a further 370 Council homes between 2025/26 and 2027/28. This will include a similar suite of energy efficiency measures, together with replacement of gas boilers with air source heat pumps in 37 homes. The current EWI contract is due to expire in March 2026, however the above demonstrates that there is an ongoing demand for the works and services. This report proposes the procurement and award of a new contract(s) to ensure continuity in the delivery of the energy efficiency programme once the current contract expires.

Cabinet resolved to approve the issue of tenders and, following the evaluation of tenders, authorise the Director of Economy and Place to award a contract(s) to a contractor(s) to deliver energy efficiency (retrofit) and associated maintenance works to Council Housing for three years from 2026-29, with an option to extend for one or more periods up to a maximum of two years.

Under the Local Air Quality Management (LAQM) regime, Local Authorities are responsible for monitoring air quality and contributing to national targets, including the reduction of Particulate Matter (PM2.5). In Cambridge, solid fuel burning is the largest single source of PM2.5 emissions, accounting for 40% of the total. According to the Public Health Outcomes Framework, 51 deaths in Cambridge in 2023 could be attributed to particulate air pollution (latest available data).

The primary legislation governing emissions from solid fuel burning is the Clean Air Act 1993, which includes provisions for Smoke Control Areas (SCAs). Within an SCA, smoke emissions are prohibited unless smokeless fuel is used, or the appliance is approved by DEFRA. The existing SCAs in Cambridge, established in the 1960s and 70s, cover only a small portion of the city and exclude the majority of residential properties, limiting their effectiveness to control emissions.

To assess the potential impacts and benefits of expanding the SCA to cover the entire city, Cambridge City Council commissioned independent experts, Air Quality Consultants Ltd. Their report evaluated the environmental, health, and socio-economic impacts of such an expansion, including the implications of including or excluding permanently moored vessels.

The report concluded that expanding the SCA citywide would result in a net societal benefit, primarily from health improvements due to reduced air pollution and greenhouse gas emissions. These benefits were found to outweigh the associated costs, which include the financial burden on homeowners and vessel owners to switch fuels or upgrade appliances, as well as implementation and enforcement costs for the Council. The socio-economic analysis highlighted that few residents rely solely on solid fuel for heating and hot water. Most use wood-burning stoves for leisure or to supplement other heating methods. However, evidence suggests this is not the case for residents of moored vessels, who are more dependent on solid fuel, may have lower incomes and be more vulnerable.

Following agreement at the Environment & Community Scrutiny Committee on 26th September 2024, a public consultation was held from 27 January to 20 April 2025. A total of 776 responses were received, with approximately 55% in favour of expanding the SCA and 40% opposed. Supporters cited health and environmental benefits, while opposition focused on concerns about impacts on low-income households, personal freedom, scepticism about air pollution levels, and resource prioritisation by the council. In parallel, targeted engagement was conducted with the boating community. The findings of the consultation and wider targeted engagement supported the findings of the report, that with the exception of the boating community most residents are not solely dependent on solid fuel and that for most burning solid fuel is a personal choice.

Based on the findings of the independent report, public consultation, and targeted engagement, the recommendation is to revoke the existing SCAs and establish a single, citywide SCA. However, permanently moored vessels should be excluded from the expansion at this time due to the disproportionate impact on this group. The Council will continue to engage with the boating community to explore viable alternatives and seek funding to support a transition to more sustainable heating solutions.

Cabinet resolved to approve revoking the existing Smoke Control Areas (SCAs) and implementing a single, city-wide SCA, excluding permanent residential moored vessels.